How to Claim Health Emergency Allowance (HEA) for Healthcare Workers in the Philippines

Introduction

The Health Emergency Allowance (HEA) represents a critical financial support mechanism established by the Philippine government to recognize and compensate healthcare workers (HCWs) for their extraordinary risks and sacrifices during the COVID-19 pandemic. Enacted as part of the nation's emergency response framework, the HEA aimed to provide monetary assistance to both public and private HCWs directly involved in managing COVID-19 cases or exposed to related hazards. This allowance was not merely a gratuity but a statutory entitlement rooted in the principles of equity, occupational safety, and public health protection under Philippine law.

In the Philippine context, the HEA underscores the government's obligation to safeguard the welfare of frontliners, as enshrined in the 1987 Constitution (Article XIII, Section 11, prioritizing health services) and various labor and health statutes. While the state of public health emergency due to COVID-19 was lifted by President Ferdinand Marcos Jr. via Proclamation No. 297 on July 21, 2023, the processing and payment of HEA claims continue for eligible periods, addressing backlogs and unresolved entitlements. This article comprehensively details the legal foundations, eligibility, computation, claiming procedures, and ancillary aspects of the HEA, serving as a guide for HCWs, administrators, and legal practitioners navigating this process.

Legal Framework

The HEA is grounded in a series of legislative and administrative issuances that evolved with the pandemic's progression:

Republic Act No. 11469 (Bayanihan to Heal as One Act, March 2020): This initial law authorized emergency measures, including special risk allowances for HCWs. It empowered the President to provide compensation for public HCWs exposed to COVID-19.
Republic Act No. 11494 (Bayanihan to Recover as One Act, September 2020): Expanded the scope to include private HCWs and formalized the HEA as a monthly allowance based on risk exposure levels. It allocated funds from the national budget and authorized the Department of Health (DOH) and Department of Budget and Management (DBM) to issue implementing rules.
DOH-DBM Joint Circular No. 1, s. 2020 (November 2020): Provided the initial guidelines for HEA implementation, defining eligibility, rates, and procedures. This was amended by subsequent circulars to address gaps.
DOH-DBM Joint Circular No. 1, s. 2021 (July 2021): Revised guidelines to include additional categories of HCWs and clarify risk classifications.
Republic Act No. 11712 (Public Health Emergency Benefits and Allowances for Health Care Workers Act, April 2022): Codified and expanded benefits, including HEA, sickness and death compensation, and meal/transport allowances. It mandated continued funding even post-emergency and established a grievance mechanism.
Executive Order No. 168, s. 2022: Created the Inter-Agency Task Force for the Management of Emerging Infectious Diseases, which oversaw HEA disbursements.
Proclamation No. 297 (July 2023): Lifted the public health emergency, effectively ending new HEA accruals after June 30, 2023. However, Section 4 of RA 11712 ensures that pending claims for prior periods remain valid and payable.
Budgetary Provisions: Funding for HEA was sourced from the General Appropriations Act (GAA) for fiscal years 2020-2024, with specific line items under DOH and DBM. Unexpended funds from Bayanihan Acts were realigned for backlog payments, as per DBM Circular Letter No. 2023-10.
Related Jurisprudence and Opinions: The Supreme Court has not directly ruled on HEA claims, but analogous cases like those under the Magna Carta for Public Health Workers (RA 7305) emphasize prompt payment of hazard pay. DOH legal opinions (e.g., via the Health Policy Development Program) affirm that HEA is a non-taxable benefit under BIR Revenue Regulation No. 11-2021.

These laws collectively form a robust framework, prioritizing HCWs' rights while imposing accountability on implementing agencies.

Eligibility Criteria

Eligibility for HEA is strictly defined to ensure targeted distribution:

Covered Individuals: All HCWs, including doctors, nurses, medical technologists, allied health professionals, barangay health workers (BHWs), and support staff (e.g., janitors, drivers in health facilities) who were directly involved in COVID-19 response.
Public vs. Private Sector:
- Public: Employees of national government agencies (e.g., DOH hospitals), local government units (LGUs), state universities, and GOCCs (government-owned and controlled corporations).
- Private: Staff in licensed private hospitals, clinics, laboratories, and other facilities handling COVID-19 cases.
Exposure Requirement: HCWs must have been occupationally exposed to COVID-19 risks, such as treating patients, handling specimens, or working in quarantine facilities. Mere employment in a health facility does not suffice without documented exposure.
Contractual Status: Includes regular, casual, contractual, job order, and contract-of-service personnel. Volunteers and trainees are eligible if duly accredited by DOH.
Exclusions: Administrative staff not exposed to risks; HCWs who resigned or were terminated before the claim period; those receiving equivalent benefits from other sources (e.g., foreign aid).
Special Cases: Deceased HCWs' heirs may claim on their behalf. HCWs who contracted COVID-19 are entitled to additional sickness benefits under RA 11712, which may be claimed alongside HEA.

Eligibility is verified by the head of the health facility or LGU, with DOH regional offices providing oversight.

Risk Classification and Allowance Rates

HEA amounts are tiered based on risk levels, as per DOH-DBM guidelines:

Risk Categories:
- High Risk: Direct contact with COVID-19 patients (e.g., ICU staff, swabbing teams) – P9,000 per month.
- Moderate Risk: Indirect exposure in COVID-19 facilities (e.g., laboratory techs, ward nurses) – P6,000 per month.
- Low Risk: Minimal exposure but in health facilities (e.g., outpatient consults) – P3,000 per month.
Computation: Pro-rated for partial months based on actual days worked (e.g., for 15 days in high risk: (P9,000 / 30) x 15 = P4,500). Overtime or night shifts do not increase rates.
Tax Treatment: Exempt from income tax, as classified as de minimis benefits.
Period Covered: From July 1, 2021 (retroactive application) to June 30, 2023. Earlier periods (2020-2021) were covered under the Special Risk Allowance (SRA), which HEA superseded, with transitional claims allowed.

Procedure for Claiming HEA

The claiming process differs slightly between public and private sectors but follows a standardized workflow.

For Public Healthcare Workers

Facility-Level Submission: The HCW submits a claim form to their employing agency (e.g., hospital administrator or LGU health officer). The form includes certification of eligibility and risk level.
Validation: The agency head validates claims against attendance records, exposure logs, and payroll data.
Consolidation and Endorsement: Claims are consolidated monthly/quarterly and endorsed to the DOH Center for Health Development (CHD) in the region.
DOH Review: CHD reviews for completeness and forwards to DOH Central Office for fund release via DBM.
Payment: Funds are downloaded to the agency for direct deposit to HCWs' bank accounts or payroll. Payments are made via Advice to Debit Account (ADA) or checks.

For Private Healthcare Workers

Facility-Level Preparation: The private facility's HR or administrator prepares a master list of eligible HCWs, certified by the facility head.
Submission to DOH CHD: Submit the list and supporting documents to the nearest DOH regional office.
Verification: DOH CHD verifies against facility licenses, patient logs, and COVID-19 case reports.
Fund Allocation: Approved claims are forwarded to DOH Central for budgeting, with funds released via sub-allotment to CHDs.
Disbursement: Payments are made directly to HCWs' accounts or through the facility as conduit.

Timelines: Claims must be filed within 6 months from the end of the eligible month (extendable under exceptional circumstances). Processing typically takes 3-6 months, though backlogs have extended this.
Online Platforms: DOH introduced the HEA Online Application System (via doh.gov.ph) for tracking claims, though manual submission remains primary.

Required Documents

Essential documents include:

Duly accomplished HEA Claim Form (Annex A of DOH-DBM JC 1 s. 2021).
Certification of Eligibility and Risk Level (signed by facility head).
Service Record or Certificate of Employment.
Daily Time Records (DTR) or attendance logs showing exposure days.
For private: Facility's DOH license and COVID-19 handling accreditation.
Bank account details (Landbank preferred for public sector).
For heirs: Death certificate and affidavit of heirship.

Incomplete submissions are returned for rectification.

Payment Mechanism and Monitoring

Payments are funded from the national budget, with DOH as the lead agency. DBM releases funds via Special Allotment Release Orders (SAROs). As of 2025, approximately PHP 19.3 billion in backlogs remain, prioritized under the 2024-2025 GAA extensions.

HCWs can monitor status via DOH hotlines (e.g., 1555) or the DOH website's HEA portal. Transparency is ensured through quarterly reports published by DOH and audited by the Commission on Audit (COA).

Grievance and Appeals Mechanism

Under RA 11712, a Grievance Committee per CHD handles disputes:

Filing: Submit grievances within 30 days of denial or underpayment, with evidence.
Process: Committee reviews within 15 days; appeals go to DOH Secretary.
Remedies: Includes recomputation, back payments, or administrative sanctions against erring officials.
Legal Recourse: Unresolved cases may be elevated to the Civil Service Commission or courts under administrative law (e.g., mandamus for delayed payments).

Common issues include misclassification of risk, delayed submissions, and fund shortages, often resolved through DOH advisories.

Challenges, Issues, and Recent Developments

Implementation faced hurdles like bureaucratic delays, inconsistent risk assessments, and funding shortfalls, leading to protests by HCW unions (e.g., Alliance of Health Workers). COA reports highlighted overpayments in some cases due to duplicate claims.

As of August 2025, DOH has disbursed over PHP 70 billion in HEA, with ongoing efforts to clear backlogs by end-2025 per DBM commitments. Post-emergency, no new HEA is accruable, but RA 11712's framework could inform future emergency benefits. HCWs are advised to consult DOH CHDs for personalized guidance, as guidelines may be updated via new circulars.

In summary, claiming HEA involves meticulous documentation and adherence to procedural timelines, reflecting the Philippine legal system's emphasis on accountability and equity for its healthcare heroes. For the latest forms or updates, refer to official DOH issuances.